History of Census in India
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Drop-in-Article on Census - No.5
History of Census in India
A population Census is the process of collecting, compiling, analyzing and
disseminating demographic, social, cultural and economic data relating to all persons
in the country, at a particular time in ten years interval. Conducting population
census in a country like India, with great diversity of physical features, is
undisputedly the biggest administrative exercise of peace time. The wealth of
information collected through census on houses, amenities available to the
households, socio economic and cultural characteristics of the population makes
Indian Census the richest and the only source for planners, research scholars,
administrators and other data users. The planning and execution of Indian Census is
challenging and fascinating.
India is one of the very few countries in the World, which has a proud history
of holding Census after every ten years. The Indian Census has a very long history
behind it. The earliest literature ‘Rig Veda’ reveals that some kind of Population count
was maintained during 800-600 BC. Kautilya’s Arthasastra, written around 321-296
BC, laid stress on Census taking as a measure of State policy for purpose of taxation.
During the regime of Mughal king Akbar the Great, the administrative report ‘Ain-e-
Akbari’ included comprehensive data pertaining to population, industry, wealth and
many other characteristics. In ancient Rome, too, census was conducted for purpose
of taxation. The history of Indian Census can be divided in two parts i.e. Pre
Independence era and Post Independence era.
Pre Independence Period
The History of Census began with 1800 when England had begun its Census
but the population of dependencies was not known at that time. In its continuation ,
based on this methodology census was conducted in town of Allahabad in 1824 and
in the city of Banaras in the year 1827-28 by James Prinsep. The first complete
census of an Indian city was conducted in 1830 by Henry Walter in Dacca. In this
Census the statistics of Population with sex and broad age group and also the houses
with their amenities were collected. Second Census was conducted in 1836-37 by
Fort St.George. In 1849 Government of India ordered Local Government to conduct
quinquennial returns of population. As a result a system of periodical stock taking of
people was inaugurated in Madras which was continued till the imperial census was
ordered. These returns were taken during the official years 1851-52, 1856-57, 1861-
62 and 1866-67 respectively. The Census in North Western provinces took place in
1852, which was regular house to house numbering of all the people in the province
at the night of 31st December 1852. The quinquennial Census of 1866-67 was
merged in the imperial census of 1871.
Drop-in-Article : Census of India 2011 Page 1The Home Government of Government Of India had desired ,under Statistical
Dispatch No.2 of July23, 1856 , that a general census of population might be taken in
1861, which was postponed in 1859 due to the mutinies. However on 10th
January,1865 a census by an actual house to house enumeration was undertaken in
North western provinces. A similar census was undertaken in November, 1966 in
central provinces and in 1867 in Berar. The Census in Punjab territory was taken in
January 1855 and 1868 respectively. The Census of Oudh was taken in 1869. In the
cities of Madras, Bombay and Calcutta census was taken in 1863, 1864 and 1866
respectively. An experimental census of lower provinces of Bengal was organized in
1869, which was completed by H. Beverley, Registrar General. In 1865 the
Government of India and Home Government had agreed upon the principal that a
general population census would be taken in 1871. In the year 1866-67 census was
undertaken by the actual counting of heads in most of the part of the country, which
is known as the Census of 1872. This Census did not cover all territories possessed
or controlled by the British. In this Census a House Register was canvassed with 17
questions. The information collected pertains to name, age, religion, caste or class,
race or nationality, attending school /college and able to read and write. These
common questions were asked separately from males and females. A question on
occupation was canvassed for males only.
The Census of 1881 which was undertaken on 17th February, 1881 by W.C.
Plowden, Census Commissioner of India was a great step towards a modern
synchronous census. Since then, censuses have been undertaken uninterruptedly
once every ten years. In this Census, emphasis was laid not only on complete
coverage but also on classification of demographic, economic and social
characteristics. The census of 1881 took in entire continent of British India (except
Kashmir) which also includes feudatory states in political connection with the
Government of India. However it did not includes French and Portuguese colonial
possessions. However, a census of Portuguese colonial dominions in India was also
undertaken at the same time as the British Indian Census. British provinces viz,
Bengal, North west Provinces, Madras, Bombay, Punjab, Assam, Baruch, Berar,
Coorg and Ajmer besides Native states of Rajputana, Central India, the Nizam’s
dominions, Mysore, Baroda, Travancore and Cochin were included in the census of
1881.In the Census of 1881 a schedule ‘Census Schedule’ with 12 questions was
canvassed. Deviating from past a question on sex was introduced and practice of
canvassing same questions for males and females separately dropped. New question
on marital status, mother tongue, place of birth and infirmities were included. The
question on education was modified to the extent that for those who are not
educated it was ascertained that whether they are able to read and write. From
Hindus their caste was ascertained and in other cases information on Sect was
obtained.
The second census was conducted from 26th February, 1891 almost on the
pattern of 1881 census. In this Census, efforts were made for hundred percent
coverage and Upper part of present Burma, Kashmir and Sikkim were also included.
During this census, the same schedule was canvassed which contains 14 questions.
The question on religion, cast, literacy, occupation etc were further modified. In place
of religion, information on main religion was obtained and information on sect was
Drop-in-Article : Census of India 2011 Page 2also collected. Questions on caste or race of main religion and sub division of cast or
race were also canvassed. The departure from previous census was that in place of
Mother Tongue, information on Parental Tongue was obtained.
The third continuous census was started on 1st March, 1901. In this census
Baluchistan, Rajputana, Andaman Nicobar, Burma, Punjab and remote areas of
Kashmir were included and in respect of other areas, where detailed survey was not
possible, population was estimated on the basis of houses. The census schedule of
1901 census contained 16 questions. The main change was that the provision for
house number was made in the Schedule. Other changes were caste of only Hindus
and Jains were recorded and in case of other religion name of tribe or race were
recorded. In place of foreign language, a new question “Know or does not know
English” was included. In place of mother/parental tongue, the question was modified
to the extent ‘Language ordinarily used’.
The Census of 1911 was commenced on 10th March, 1911 in all fourteen
British Provinces and Native states. In this census, the whole Empire of India i.e.
territories administered by the Government of India and mediatized Native states
were covered with the exception of a few sparsely inhabited and un administered
tracts on the confines of Burma and Assam. The census Schedule canvassed in this
census contained same number of 16 questions but their scope was extended. In
place of age, the question was asked “Age Completed last Birthday”. Along with the
question on religion, sect of Christians was also ascertained. The particulars of
district, province or country were asked in respect of Birth Place question. In 1901 a
question ‘know or does not know English’ was asked but in 1911 in its place the
question was asked “Whether Literate in English”.
1921 Census , the fifth census in its continuous series was started on 18th
March,1921. In this Census the whole of territory known as the Indian Empire was
covered which also includes the territories directly controlled by the Government of
India generally known as British India and the Indian States consisting of areas
administered by Indian chief in political relation with Central Government or with one
or other Provincial Government. Although the Census schedule of 1921 contains the
same questions like 1911 but they were canvassed with slight modifications. The sect
of Christians which was asked in 1911 was dropped and information on caste, tribe
or race was collected from all irrespective of their religion.
The sixth general census of India commenced on February 26, 1931. The
area covered in this census was approximately identical with that of covered by the
census of 1921. The 1931 Census also coincided with a civil disobedience movement.
The census Schedule of 1931 Census contains 18 questions instead of 16 questions
of 1921 census. The two new questions added were- a) Earner or Dependent and b)
Mother Tongue (which was asked only in 1881). For eliciting information on 2nd
language the question ‘other language in common use’ was retained. Again the sect
was added with religion and age was ascertained in respect to nearest birth day.
The Census of 1941 started under the adverse conditions of war. Till
February 1940, Government was un-decided of whether to have a census or not.
With concerted effort, the enumeration was carried out directly into the slips which
Drop-in-Article : Census of India 2011 Page 3were later sorted out to generate tables. The idea of one night enumeration was
dropped in this census. The major innovation of 1941 census was to use random
sample and every 50th slip was marked to list the validity of a sample in census. In
place of census Schedule, an Individual Slip was canvassed which contains 22
questions. The formation of questions was modified to the great extent. Following
were the new questions of 1941 census:
i. Number of children born to a married woman and number surviving.
ii. Her age at birth of first child.
iii. Do you employ a) paid assistance b) member of household, if so how
many?
iv. Are you in search of employment (for unemployed) and how long have
been you in search of it?
v. How far have you read?
Besides, the question of literacy was asked in different way’ “Can you both
read and write? If so, what script do you write? Can you read only?”
This was the last Census of Pre Independence period. Following table depicts
the year, reference period, Schedule canvassed and number of questions asked in
each census since 1872 to 1941:
No. of
Census
Sl. No. Reference Period question Schedule Canvassed
Year
asked
1 1872 - 17 House Register
2 1881 17th February 12 Census Schedule
3 1891 26th February 14 Census Schedule
4 1901 1st March 16 Census Schedule
5 1911 10th March 16 Census Schedule
6 1921 18th March 16 Census Schedule
7 1931 26th February 18 Census Schedule
8 1941 1st March 22 Individual Slip
Censuses of Post Independence Period
After 1941 Census India got its independence in 1947. The Bhore Committee
constituted for making Plans for post war development in the field of health made a
comprehensive review of the field of population and recommended that a Registrar
General of Vital and Population Statistics at the centre be appointed and at provincial
level, a Superintendent may be appointed with a view to improve the quality of
population statistics. The Bhore Committee also recommended that “The Population
Problem should be the subject of Central study”. Accordingly the Census Act came
into force in 1948 (Act No.37 of 1948). The censuses of post independence era were
conducted as per the provisions of this Act.
The first census of Independent India was conducted in 1951, which was
the seventh census in its continuous series. The enumeration period of this Census
was from 9th to 28th, February 1951. A three day revisional round from 1st to 3rd
Drop-in-Article : Census of India 2011 Page 4March was undertaken to update the data as on sunrise of 1st March, the reference
date. An Individual Slip was canvassed which contained 13 questions. The particulars
like name, relationship, birth place, sex, age, economic status, principal and
subsidiary means of livelihood were obtained for each individual. The information on
religion, mother tongue, literacy was also obtained. Out of 13 questions, 12
questions with its sub parts were common for all states while 1 question with sub
parts relating to fertility, unemployment, infirmity, size of family was optional for
certain states. In the Census of 1951 the entire Jammu and Kashmir was excluded
from Census and its population was estimated on the basis of past census figures.
Census of 1961 started on 10th February and ended on sunrise of 1st March.
The revisional round took place for 5 days instead of 3 days of 1951 Census.
However, the reference date remained unchanged. In place of Individual Slip of 1951
Census, following two schedules were canvassed:
a) Household Schedule For each Household
b) Individual Slip For each Individual
The Household Schedule was divided in A, B & C parts which were further
divided in sub parts. Information relating to persons engaged in cultivation and
Household industry was collected through this schedule. The Individual Slip consists
of 13 questions. The Individual Slips of 1951 and 1961 Censuses differ in following
ways;
• In 1961, age at last birthday was asked in place of age.
• A question on civil condition asked in 1951 was dropped in 1961.
• The question on birth place was further sub divided in three parts
to elicit information on rural /urban status and duration of
residence.
• In 1951, information on economic status with dependency and
employment status was obtained whereas in 1961 its scope was
enlarged and details of employment in four broad categories of
workers with nature of industry, class of workers etc was also
obtained.
The Census of 1971 was 11th census in continuous series and 2nd after
independence. The census of 1971 was conducted at different time as compared to
previous censuses to avoid clash with mid-term Parliamentary Election. The census of
1971 was conducted between 10th March and 31st March and revisional round was
taken from 1st to 3rd April. Deviating from past, the reference date was taken as 1st
April, 1971. The Census of 1971 was conducted in following two phases;
i. Houselisting Operations
ii. Actual Enumeration
The first phase was conducted in different part of country at different time
between June to September, 1970 by canvassing two schedules viz, Houselist and
Establishment Schedule. During the second phase an Individual slip was canvassed
Drop-in-Article : Census of India 2011 Page 5which contained 17 questions. The following were the new features of 1971
Individual Slips;
a. A question for getting Information on fertility for currently married
women was included.
b. An additional question “Last Residence” was included to get the
information on migration aspect in a better way.
c. The scope of economic questions was further enlarged and a new
question on secondary work was introduced.
The fourth census of Independent India was conducted from 9th to 28th
February, 1981 with a revisional round from 1st to 5th March, 1981.The reference
date was again reckoned as sunrise of 1st, March which could not be adhered to in
1971. On the pattern of 1971, this census was again conducted in two phases. In
the first phase, a Houselist Schedule was canvassed but the establishment schedule
which was canvassed during 1971 was dropped in 1981. Deviating from past
census, in 1981 following two schedules were canvassed during 2nd phase;
i. Household Schedule
ii. Individual Slip
The Household schedule consists of two parts. In the first part the particulars
of household like religion, SC/ST status, language spoken and also predominant
construction materials of wall, roof and floor were collected. The information on
amenities like drinking water, electricity, toilet facility available to the Household was
also collected in first part of Household schedule. In the second part characteristics of
each individual which were identical to Individual slips were collected. Information on
first few columns in part II of Household & Individual Slip were recorded in the field
simultaneously while in remaining columns of Household schedule the information
from Individual slip was transcribed later on. Following changes were incorporated in
Individual slip of 1981 Census;
i.
The slip was divided in two parts I and II. In first part 16
questions were included which were canvassed on Universal basis.
The second part contained 6 questions, relating to migration and
fertility, which were canvassed on Sample basis.
ii. In part I two new questions –a) Attending school/college and b) If
non worker seeking /available for work were included.
iii. In part II a question on reason for Migration was also included.
iv. In part II age at marriage was asked from ‘ever married women
‘whereas in 1971 this question was asked from ‘currently women
‘only.
The Census of 1991 was the fifth Census of independent India and
conducted as usual from 9th to 28th February, 2001 to present census data as on
sunrise of 1st March.2001, the reference date. The two phases were continued in the
same way like previous two censuses.
In the first phase a Houselist was canvassed to collect the information on
housing data and also amenities available to the households. The scope of Houselist
was enlarged and for the first time a question regarding type of fuel used for cooking
Drop-in-Article : Census of India 2011 Page 6was canvassed. In 1981 the question on availability of toilet facility was canvassed
for urban areas only, however in 1991 it was canvassed for rural areas also.
During 2nd phase following two schedules were canvassed;
i. Household Schedule
ii. Individual Slip
The special features of the 1991 Census schedule as compared to 1981 census
are as follows;
i. The Household Schedule was so designed that the PCA with nine fold
industrial category up to village level in rural area and at charge
level in urban area and also data relating to religion and mother
tongue can be prepared by manual tabulation expeditiously.
ii. A new question on Ex-service man was included.
iii. The concept of literacy was changed and children of 7+ age group
were considered as literate as compared to 1981 when children up to
age group of 4+ were treated as literate.
iv. In 1981 census the question on seeking/available for work was asked
from marginal workers and non workers whereas in 1991 this
question was asked only from Non workers.
v. In 1991 census a question –“Have you ever worked before” was
included for those persons who have reported that they are
seeking/available for work.
The Census of India 2001 was the first census of twenty first century and
also third census of millennium. As in the past the Census-2001 was also conducted
in two phases. During the first phase, the Houselisting Operations was conducted
between April to September-2000 in which a houselist was canvassed. During
Houselisting, information on a large number of new items such as condition of the
building, number of independent sleeping rooms for married couples, type of toilets,
availability of drainage with further bifurcation of open or close drainage , bathing
and cooking facility within the house was collected. Some of the questions like
number of living room and number of married couples, which were canvassed during
2nd phase in 1991 through Household schedule, were canvassed during first phase
through Houselist in 2011 census. Besides, information relating to possession of
certain assets like cycle, scooter/motor cycle/moped, radio, television, telephone,
availing banking facility etc. were also collected.
The second phase ‘Population Enumeration’ was undertaken between 9th to
28th February with revisional round from 1st march to 5th March,2001.Deviating from
past censuses the census movement was 00.00 hours of 1st March, which was
otherwise mostly sun rise of 1st March of relevant Census year (except 1971) .In
certain snow bound areas of Himachal Pradesh, Uttaranchal (Now Uttarakhand) and
also J&K the enumeration was taken between 11th to 30th September 2000 but in
certain districts of J&K it was extended from 1st October to 15th November 2000. In
Kinnaur district of Himachal Pradesh due to flood the enumeration was conducted
from 12th to 31st May, 2001.Due to earth quake in Kuchchh district the population
enumeration was undertaken during 9th February to 28th February, 2002. In the
Drop-in-Article : Census of India 2011 Page 7second phase instead of Household schedule and Individual slip only Household
Schedule was canvassed. The questions which were canvassed in Household
Schedule and Individual Slips in previous two censuses were put together in one
schedule named as Household Schedule. The Household Schedule of 2001 Census
designed contain 23 questions which runs into 39 columns printed on both sides of
the Schedule. Following were the new features of 2001 Household Schedule;
i. Information regarding age at marriage was collected for males also.
ii. For type of educational institutions being attended by a person
vocational, other institute and, literacy center were added.
iii. A new question to collect information on total or partial disability was
canvassed. In 1981 the question on disability was canvassed in first
phase and dropped in 1991.
iv. Question on seeking and available for work was also canvassed for
marginal workers and question on secondary work of main workers
was dropped.
v. A new question on distance travelled by a person to his/her work
place and also mode of travel was canvassed for persons engaged in
non agriculture activities.
vi. Sex wise information was collected for the children born alive during
last one year.
vii. Net area of land under cultivation/plantation and net area of irrigated
land was also collected for those households who were engaged in
cultivation/plantation in Part III of Household Schedule.
viii. For the first time provision was made in the Household Schedule for
taking signature or thumb impression of the respondent.
A quantum leap was also made in the technology front in 2001 Census. The
schedules for the phases were scanned through high speed scanners and hand
written data from the schedules were converted into digitized form through
Intelligent Character Reading (ICR).
The next Census of India will be conducted in 2011. The first phase –
Houselisting and Housing Census has already been conducted between April to June,
2010 in different States and UTs. A Schedule was canvassed during this phase to
collect information on Housing and amenities available to the households. For the
first time each schedule was assigned a serial number to maintain a proper account
of each and every form. The major departure was canvassing a National Population
Register at the time of Houselisting and Housing Census. The NPR would be a
register of usual residents of the country. It will be a comprehensive identity data
base that would help in providing the benefits and services under the Government
programmes to improve planning and help to strength security of the country. The
information collected through NPR will be used for providing a Unique Identity
Number after a detailed procedure. The Houselisting and Housing Census of 2011
contains 34 questions with following modifications / additions compared to the same
in 2001:
Drop-in-Article : Census of India 2011 Page 8i. Question on number of separate bed room for married couple has
been dropped.
ii. A new question on availability of Computer/ Laptop, with or without
internet facility was included.
iii. Mobile phone was added with telephone facility.
iv. The question on availably of latrine was further divided into two
parts- i) Latrine within the premises ii) Type of Latrine.
v. Regarding source of drinking water the tap water was splitted into
tap water from treated source and tap water from un treated
source. Besides separate codes were given for covered and
uncovered well.
vi. In type of latrine separate code for public latrine was included.
vii. NPG was included under fuel used for cooking.
The 2nd phase of Census-2011 will be conducted from 9th to 28th February 2011
with 5 days revisional round from 1st to 5th March, 2011 so that the population
figures with reference to reference date, i.e., 00.00 hours of 1st March, 2011 can be
obtained. During second phase, Household Schedule will be canvassed. Following are
the main changes of Household Schedule of 2011 census as compared to 2001
Census;
i. Separate code for ‘Other’ introduced under sex column.
ii. Instead of one code two separate codes has been given for
divorced and separated.
iii. Date of Birth will be recorded in addition to Age.
iv. In 2001 under SC/ST only name of Caste/Tribe was collected in
case of those persons who returned themselves as SC/ST. In 2011
Census a filter question has been separately introduced enquiring
‘If the person is SC/ST’. If so, then name of the SC/ST is asked.
v. The question on disability was further divided in three sub parts. In
type of disability separate code for mental retardation, mental
illness and multiple disabilities has been given. In case of multiple
disabilities provision has been made for recording maximum 3
types of disability.
vi. Under question ‘Status of attendance in educational institution’
separate codes has been given for special school for disabled. For
those who are not attending any educational institution, provisions
has been made for collecting information on those who have either
attended any institution before and also for those who have never
attended any institution.
vii. For “Rentier” separate code has been given under non workers
category.
viii. Under question ‘Travel to Place of work’ one way distance from
residence to place of work will be collected.
ix. Under questions of migration in 2001 Census, only names of
district, state and country were collected but in 2011 Census,
provision has been made to collect the name of village/ town also.
Drop-in-Article : Census of India 2011 Page 9x. In 2001 Census, for households engaged in cultivation some
information regarding net area under cultivation/irrigation was
collected in Part III but in 2011 Census this information will not be
collected.
The Indian census has not been a mere statistical operation and the data
collected is not only properly scrutinized at different levels but also presented with
cross classification of various parameters for interpretation and analysis in an
interesting manner. It may be seen from the history of Indian Census that how the
changes have taken place from one census to other depending upon the need of the
time, country and also demand of the data users and development of technology.
The Indian census is well recognized for the data it reveals. Problems relating to
political, social and cultural reasons also makes it challenging. In spite of all these
difficulties, the census in India is being conducted since 1871 uninterruptedly.
The number of questions canvassed during Population Enumeration in
Censuses from 1951 to 2011 is listed below:
Census Year Number of Questions
1951 Census 14 Questions
1961 Census 13 Questions
1971 Census 17 Questions
1981 Census 16 Questions
1991 Census 21 Questions
2001 Census 23 Questions
2011 Census 29 Questions
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